Comparative Public Management and Policy

1
Comparative Public Management and Policy

• PIA 3090

2
The Main Event

• I. Golden Oldies
• II. Literary Map
• III. Grand Synthesis

3
Bureaucracies, Politicians and Clients

• Overall Themes of the Week
• The comparative advantage of the "Iron Triangle"
  model.
• Legislature-Executive-Lobbyist
• Corporatism as the Alternative

4
Three Models

• 1. Japan- Johnson's perspective (State Centric
  Planning and one way movement)
• 2. Europe- (Orwell, Greene, Heady (Pluralism
  vs. Corporatism)
• 3. U.S.- (Truman vs. C. Wright Mills)
• 4. Latin America Military Corporatism and
  Patron Client Relationships

5
LDCs

• An absence of "clients" or Too many?
• The Role of patronage, corruption and Crony
  capitalism.
• -Indonesia
• -Korea
• -West Africa
• -China

6
ISSUE

• Public Interest vs. private interests (and the
  bureaucracy as an interest group)
• Question Is there such a thing as a Public
  Interest Group? (PIG)
• NGOs Public or Ideological?

7
Major themes in Comparative Public Administration-

• Administrative Structures and Society-
• 1. Individualist view of state-society
  relationships
• a. Common law view of society
• b. Anglo-Saxon model law and order as
  basic function of government
• c. Society made up of individuals- liberalism

8
Administrative Structures and Society

• 2. Statist view of Society- Collectivist
  (Frances FitzGerald- Fire in the Lake on
  Vietnam)- Three Views
• a. Idea of an active, creative state,
  development oriented (Keynes)
• b. Marxist-Leninist model- communitarian
• c. Corporatist idea of society as groups-
  civil service as a group (Western Europe)

9
Political Structures and Public Management

• 1. Issues of Governance, Interests and
  Political Development
• 2. The Administrative State Concept Weak
  Political controls and a strong bureaucratic
  elite

10
Political Structures and Public Management

• 3. Elite vs. egalitarian views of public
  service. (A Reminder)- Interests within the
  State)
• a. Maximum Deferred Achievement (No
  pre-selection)
• b. Maximum Ascriptive Model (Class based)
• c. Progressive Equal Attrition Model
  Egalitarian- Professional- collectivist

11
Political Structures and Public Management

• 4. Structure of Civil Service Systems The
  role of Mandarins and political penetration into
  the civil service
• 5. Decayed and Transferred Institutions
  (Kings and Colonies)- The creation of an
  organizational bourgeoisie (Irving Markovitz)
• 6. Corporatist Systems can be royalist,
  military, social (Spain, Argentina, Scandinavia)

12
Partisanship, Democracy and Bureaucracy

• a. Fused vs. Separation of Powers Yes
  Minister (Britain)
• b. Cabinet Government vs. Presidential
  Systems- Collective Responsibility (U.S. Latin
  America and France- Mixed)
• c. Legislatures- Committee systems and
  bureaucratic authority

13
Authoritarianism

• Authoritarian systems- Structures to protect
  citizens from fused state and bureaucracy
• Non-Constitutional Systems Military Regimes
  and One Party States- Politicized bureaucracy
• Rent Seeking, Nepotism and Corruption

14
The Myth Classical Non-Partisanism

• The Politics/Administration Dichotomy The Role
  of Non-Partisan Movements and Generic Management
• POSDECORB (Luther Gulick)
• (Planning, Organizing, Staffing, Directing,
  Coordinating, Reporting, and Budgeting)
• How Neutral?

15
Differences between the public and the private
sector- How much, or how little?

• a. No significant differences between personnel
  in large private vs. public organizations
• b. Differences in the structures within which
  the individual has to work
• c. The bureaucracy is an institution of
  government

16
Government Differences from the private sector-

• Difference in Product
• a. Private- emphasis is on profit, economy and
  efficiency
• b. Public- need to account for the political
  and social- not what is always efficient
• c. Issue- motivation or its absence in the
  public sector

17
Recruitment

• KEY The recruitment of professionals and
  specialists contradicts with the issue of
  political control
• a. Problem- management, eg. the Department,
  often does not control recruitment
• b. Legislation sets the rules- merit system
  with civil service commission overseeing the
  process
• c. Civil Service Commission or Office of
  Personnel acts as an intermediary

18
THE PROBLEM

• Management of the public sector organization is
  separated from the major management functions-
• eg. promotion, firing, discipline, collective
  bargaining

19
The Bottom Line

• Government Has THE Monopoly of Power
  (Ultimately Life and Death)

20
Basic Principles?

• The Bureaucracy is an institution of government
• a. The public bureaucrat has greater recourse
  to sanctions than the private
• b. Only partly true- the credit card company
  and the collection agency

21
Origins of bureaucratic power

• a. Bureaucracy is largely autonomous, only 10
  of actions controlled by politicos
• b. Actions are seldom subjected to political or
  judicial review
• c. Problem of bureaucratic lethargy- resists
  change

22
Origins of bureaucratic power-2

• d. Bureaucracies are COMPLEX ORGANIZATIONS and
  are difficult to control
• e. Bureaucrats have the market cornered on
  expertise
• f. Bureaucrats play "bureaucratic politics"
  behind the politicians' backs

23
The political implications of role theory

• ROLE SETS (Robert Merton)
• Role Conflict in the bureaucracy
• Role vs. Status vs. Individuals

24
Role Theory

• The bureaucrat can have a complex set of
  interpersonal relationships
• 1. Analyst and advocate
• 2. Planner
• 3. Managers and lobbyists
• 4. Professional and employee
• 5. Citizen

25
The Rights of the Bureaucrat

• The role of Unions and strikes in the public
  service
• Restrictions on political activity, eg. the
  Hatch Act in the U.S.
• Secrecy, Clearance and Whistle Blowing